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A Strategy for the Future Use of the Radio
Spectrum in the UK
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A Strategy for the Future Use of the Radio
Spectrum in the UK
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Introduction
In developing a strategy for the management and use of the radio spectrum it is essential to examine the current developments in major areas of radiocommunications with a view to assessing, wherever possible, the future impact on demand and use of the spectrum. To set the framework for the strategy which follows in later sections of this document, developments in the services listed in the introduction which have the most immediate direct economic and strategic impact are analysed here, viz., broadcasting, fixed, space services - fixed satellite, mobile satellite and science services - and mobile radio services.
1.1 General
In last year's document, the RA began the dialogue concerning trends in the use of radio for broadcasting services and the implications for spectrum demand and also raised tentatively some issues concerning the place of radio in accommodating the convergence of broadcasting, telecommunications and computing into interactive multimedia services. As a result of the comments received, along with further developments in the market during 1995, the RA is able to develop further the discussion on developments and to reflect the issues in the detailed analyses presented in Appendix A of the document.
1.2 Analogue Terrestrial
Broadcasting Services
Although much attention is currently focused on future digital developments, the UK is enjoying a major expansion of analogue broadcasting opportunities with the opening of the 87.5 - 88 MHz and 105 - 108 MHz bands for independent sound broadcasting and the award of the Channel 5 franchise based, primarily, around the use of TV channel 37. The roll-out of these services will represent the final tranche of spectrum to be made available for analogue services. New broadcasting legislation will, however, open the opportunity for the Independent Television Commission (ITC) to license local analogue (as well as digital) TV services within the existing UHF Bands IV and V channels. We will need to consider also the in-band spectrum needs of programme makers.
There remains some interest in commercial HF sound broadcasting and services such as Stereo-AM and RDS on AM to which the Agency will respond on the basis of judgements made with the Radio Authority and the Department of National Heritage.
1.3 Digital Audio Broadcasting (DAB)
The last year has seen a number of positive developments, not least the start up of Terrestrial (DAB) services for the BBC’s national network in the London area while NTL has begun some experiments in London and Birmingham. Other countries, notably Germany, are also increasing the momentum on the introduction of DAB. During a CEPT conference in Wiesbaden in July 1995, important Europe-wide agreements were reached on the allotment of frequencies to individual countries. The UK achieved its requirements which will enable the BBC and the Radio Authority to each plan a network of six national programme services (12 in total). The planning of local services will involve co-ordination with neighbouring administrations and will be constrained by the priority given to national coverage in the CEPT plan. The introduction of local TDAB services is therefore expected to proceed at a slower pace than national TDAB services, while some existing local analogue services may not migrate to digital at all. We are currently examining with the Radio Authority the likely coverage of local DAB services and the possible need for additional spectrum to meet the planned requirements for local services.
It is too early for the Agency to reach conclusions about the amount of spectrum that will be retained for analogue services though the position remains that, in due course, we expect VHF sound broadcasting services to occupy significantly less spectrum than the current allocations in bands II and III.
Ministers have, however, revisited the so-called "parking band" strategy and have concluded that the development of digital services and the early release of analogue spectrum will be best served by a clear statement that Band III will be the permanent home for DAB services. This will give operators the confidence to plan and invest in digital transmission equipment for Band III in the knowledge that subsequent further investment in Band II equipment will not be required. This position has been endorsed across Europe.
As for Satellite-DAB, the Agency will keep the door open for services by earmarking the relevant part of the 1500 MHz band.
1.4 Digital Terrestrial Television (DTTV)
As with DAB, the policy framework for the introduction of digital terrestrial TV services has been set by the new broadcasting bill which was introduced in December 1995. A key theme of the legislation is to encourage broadcasters, manufacturers and multiplex operators to work together for an early launch of DTTV and Ministers will consider the timing of switching off analogue services within 5 years after the award of multiplex licences. The proposed 6 national multiplexes are currently being planned within Bands IV and V on an interleaved basis alongside the existing analogue services while there may also be scope for the ITC to plan further multiplexes for smaller proportions of the population. The technical standard for DTTV equipment has also now been agreed and will enable equipment to operate in the interleaved environment but which also allows for equipment to be made which will provide, in addition, wide area single frequency network (SFN) operation.
The industry consensus is that an early launch of DTTV can only be achieved on an interleaved technology basis and, given that the UK is in the vanguard of those wishing to introduce services, it is possible that the introduction of DTTV in the UK will involve equipment that does not have any wide area single frequency network capability. This is one factor that the RA is addressing in the context of deciding how to make use of channel 35 which is clear nation-wide and which is capable of delivering a multiplexed package of TV services to well over 90% of the population in a wide area SFN. Because of the potential spectrum efficiencies, the RA does not wish, at this stage, to close the door on the channel being used for broadcasting and the position will be reviewed in the light of the capability of equipment entering the market and the views of broadcasters multiplex operators and regulators about the potential of the channel.
1.5 Satellite Television
As with terrestrial developments, the satellite transmission market is in a state of flux as operators consider the prospects for delivery of digital services. Decisions taken by broadcasters using the current ASTRA and EUTELSAT satellites, together with the launch of further satellites (as well as cable developments) are likely to have an impact on the development of DTTV. The RA is not in a position, however, to influence the development of non-domestic satellite services.
It remains the case, however, that the RA has negotiated successfully for a further five assignments at 31 degrees west enabling the support of a total of ten transponders each 27 MHz wide. This represents a significant resource for potential digital services and the spectrum has been made available to the ITC for licensing purposes.
1.6 Multipoint Video Distribution System (MVDS) and Interactive Multimedia Services (IMS)
It remains difficult to forecast how the market for IMS will develop, including the role that radio will play. The Agency expects that, particularly in rural areas, radio will play an important part in the building of broadband infrastructures.
The 40 GHz band is available for Local Delivery Service operators (LDOs) to broadcast their services within the uncabled parts of their franchise areas. A group chaired by the Agency has agreed a specification for digital MVDS systems which represents a major boost to the available capacity. The specification does not preclude the use of an in band return channel though there are, of course, alternative wire/wireless mechanisms available for this purpose. The RA acknowledges that an LDO operator should be able to replicate fully over radio the broadcasting, telephony, IMS etc. services that can be provided in the cabled areas of the franchise.
Radio access to the home, albeit with limited capacity, has already been made possible through the licensing of national Radio Fixed Access operators. The Government have also made available spectrum in the 2 GHz and 10 GHz bands to meet the advanced digital services needs of small and medium sized businesses and the telecommunication needs of those living in remote rural areas.
In anticipation of the possibility that further tranches of spectrum will be required for interactive broadband local radio access connections, the Agency has considered the appropriateness of frequencies in the higher reaches of the radio spectrum, notably the 27.5 - 29.5 GHz band and the 40.5 - 43.5 GHz band (including spectrum which abuts the MVDS allocation).
The 42 GHz band (40.5 - 42.5 GHz) is available to LDO operators for MVDS and, within the digital specification currently passing through the EC barriers to trade procedures, 100 MHz of spectrum have been earmarked for back channel purposes. The Agency now proposes to make available the 43 GHz band (42.5 - 43.5 GHz) for IMS/VOD and in addition will consider widening access to the 42 GHz band to others where LDOs are not likely to use MVDS (i.e. in areas that have already been cabled which includes most of the heavily populated parts of the country). The development of an IMS/VOD market has overtaken the original rationale for MVDS and the availability of some 3 GHz spectrum for IMS services represents a substantial amount of capacity. There are relatively few complexities associated with the 43 GHz band and completion of the necessary work to allow IMS to share the band with radioastronomy would involve a matter of a few months. The Agency is currently working on the required sharing studies.
The 28 GHz band (27.5 - 29.5 GHz) is also a longer term possibility for use by IMS services. There are, however, greater complexities and sharing problems associated with the band. In particular, the band is allocated on a co-primary status to fixed, fixed-satellite and mobile services and it is necessary to undertake studies into the sharing possibilities with other likely users of the band which have emerged over the last year or so (e.g., non-GSO Fixed-Satellite Services and, for want of a better term, multi-earth station fixed- satellite services). It is too early to gauge the amount of spectrum within the band that may be available for IMS though it could be significantly less than 1 GHz. Another uncertainty relates to the likely outcome of discussions at WRC 97 that will affect this band.
Any decisions about the release of spectrum for IMS purposes will also have to be considered by the Government in the context of, inter alia, the take-up of the 42 and 43 GHz bands, wider telecommunications and broadcasting policies and the impact on competition and choice in these markets. Inevitably, any use of the 28 GHz band will be later than for 42/43 GHz band.
1.7 Broadcasting-Programme Making and Special Events (PMSE) Spectrum
During 1995/96 the Agency completed a review of how programme making spectrum is used and managed. Its main findings were that:
· the day-to-day management of the spectrum was generally effective but some improvements could be made to maximise sharing opportunities;
· the Agency should obtain regular information to allow it to monitor the efficiency of spectrum usage;
· the current organisational arrangements for managing the spectrum should be modified so as to be capable of meeting changing demands over the next decade;
· the Agency, in co-operation with the industry, should develop and promote harmonised standards for programme making equipment;
· the Agency should actively encourage the development of more spectrally efficient equipment;
· spectrum allocations should be safeguarded as far as possible and where spectrum has to be re-allocated to other services suitable replacement should be found;
· the Agency should continue to press for European harmonised frequency bands or tuning ranges;
· the Agency should enhance its technical staffing resources dedicated to this sector.
The Agency intends to publish its report and implement the findings
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